Adding optimization application finish guard

Created Optimization application and created a translator
for it. The translator makes an assumption that OOF wants
to query on policyScope and policyType properties.

Rearranged some of the test code for re-usability.

Guard policies are now creating for frequency limiter
and min max. Probably could use some clean up.

Upgraded to xacml 2.0.1 to include a fix for handling
null attribute values.

Added some code to test missing values.

Issue-ID: POLICY-1273
Change-Id: Ia3dbfa992bbe0cbb5aa294c38aa2aff430a3230a
Signed-off-by: Pamela Dragosh <pdragosh@research.att.com>